Southland Regional Public Transport Plan 2018 2021

Page created by Philip Butler
 
CONTINUE READING
Southland Regional Public Transport Plan 2018 2021
Southland Regional Public
     Transport Plan
       2018 – 2021

          12 October 2017
Southland Regional Public Transport Plan 2018 2021
Regional Public Transport Plan 2017
Southland Regional Public Transport Plan 2018 2021
Regional Public Transport Plan
Activity

                                         Name            Signature   Date

                                 Rachel Pinn - Russell
Prepared By
                                 Pearson

Asset Manager                    Russell Pearson

Director Review

Peer Review                      Russell Hawkes - ES

Council Adoption

Regional Public Transport Plan 2017
Southland Regional Public Transport Plan 2018 2021
Changes to be Incorporated in Next Review

Number                 Date of Change   Reason for Change

Regional Public Transport Plan 2017
Regional Public Transport Plan 2017
TABLE OF CONTENTS
Regional Public Transport Plan ................................................................................... 3
Changes to be Incorporated in Next Review .................................................................. 4
Executive Summary ...................................................................................................... 8
1.     Introduction .......................................................................................................... 9
1.1    About This Plan...................................................................................................... 9
1.2    Activity Overview .................................................................................................... 9
2.     Strategic Context ............................................................................................... 11
2.1    Alignment with Strategic Goals ............................................................................. 11
       2.1.1 Community Outcomes ................................................................................. 11
       2.1.2 Rationale for the Activity ............................................................................. 13
       2.1.3 Activity Objectives ....................................................................................... 13
2.2    Business Drivers .................................................................................................. 14
       2.2.1 Regulatory Framework ................................................................................ 14
       2.2.2 District Plan and Council Policies ................................................................ 15
       2.2.3 Long Term Plan .......................................................................................... 15
       2.2.4 Regional Land Transport Plan ..................................................................... 15
       2.2.5 NZTA Business Case Approach / Better Business Case ............................. 16
2.3    Strategic Issues and Challenges .......................................................................... 20
2.4    Assumptions ........................................................................................................ 20
       2.4.1 Internal Factors ........................................................................................... 21
       2.4.2 Financial Factors......................................................................................... 22
       2.4.3 External Factors .......................................................................................... 22
3.     The Service We Provide..................................................................................... 24
3.1    Customer Profile .................................................................................................. 24
       3.1.1 Our Stakeholders and Community............................................................... 24
       3.1.2 How We Engage our Communities.............................................................. 24
       3.1.3 Community Research.................................................................................. 24
       3.1.4 Key Service Attributes Valued by Customers............................................... 25
3.2    Objectives and Policies ........................................................................................ 25
       3.2.1 Units ........................................................................................................... 27
       3.2.2 Partnering with Contractors ......................................................................... 27
3.3    Total Mobility ........................................................................................................ 28
3.4    Significance Policy ............................................................................................... 29
4.     Demand For Our Services ................................................................................. 31
4.1    Demand Forecast ................................................................................................ 31
       4.1.1 Factors Influencing Demand........................................................................ 31
       4.1.2 Projected Growth or Decline in Demand for the Service ................................ 31

Regional Public Transport Plan 2017                                                                                             5
4.2     Changes in Service Expectations (Future Levels of Service) ................................ 31
4.3     New Network........................................................................................................ 32
        4.3.1 Overview..................................................................................................... 32
5.      Wellbeing Assessment ...................................................................................... 34
5.1     Wellbeing Assessment ......................................................................................... 34
6.      Risk Assessment .................................................................................................... 35
6.1     Risk ..................................................................................................................... 35
7.      Managing Our Activities ........................................................................................ 37
7.1     Responding to the Issues and Challenges............................................................ 37
        7.1.1 Alternative Investment Approaches ............................................................. 37
        7.1.2 Do-Minimum Programmes .......................................................................... 38
        7.1.3 Programmes Evaluation .............................................................................. 38
8.      Financial Management ....................................................................................... 40
8.1. Overview .............................................................................................................. 40
8.2     Financial Summary – What the Activity Costs....................................................... 40
        8.2.1 Council Funded Programmes ...................................................................... 41
        8.2.2 NZTA Assisted Programmes .......................................................................... 43
        8.2.3 Programme Implications.............................................................................. 43
8.3     Financial Policies ................................................................................................. 43
8.4     How We Pay for the Activity ..................................................................................... 44
8.5     Asset Valuation Forecasts .................................................................................... 44
8.6     Confidence Levels in Programmes ....................................................................... 44
8.7     Reliability of Financial Forecasts .......................................................................... 45
        8.7.1 Maintenance and Renewal Forecasts ......................................................... 45
        8.7.2 Development Forecasts .............................................................................. 45
8.8     Summary of Programme Assumptions ................................................................. 45
9.      Delivering and Monitoring the Programme....................................................... 46
9.1     Programme Governance and Reporting ............................................................... 46
9.2     Stakeholder Engagement and Communications ................................................... 47
9.3     Business Processes ............................................................................................. 48
9.4     Information Systems and Data ............................................................................. 49
9.5     Programme Performance Monitoring and Review................................................. 50
        9.5.1 Monitoring Approach ................................................................................... 50
        9.5.2 Frequency of Review ...................................................................................... 50
10.     Continuous Improvement .................................................................................. 51
10.1 Current Activity Management Practice .................................................................. 51
10.2 Improvement Programme ......................................................................................... 51
10.3 Monitoring and Review......................................................................................... 51
11.     Glossary ............................................................................................................. 52

Regional Public Transport Plan 2017                                                                                                 6
12.    Appendices ........................................................................................................ 53

Regional Public Transport Plan 2017                                                                                         7
Executive Summary
Regional Public Transport Plan (RPTP) for Southland is managed by the Invercargill City
Council under delegation from Environment Southland. This delegation is considered
appropriate for management of public transport services in the region, as the only publicly
funded services are run within the Invercargill City Council area and predominately serve
the ratepayers of the city.

In 2012 Invercargill’s public transport system (including routes and fares) was
substantially changed, but after a short period of limited growth the patronage has been
steadily declining. In 2017, 198,826 passenger trips were undertaken which is a 24%
reduction from 262,000 in 2012.

While patronage has declined in other New Zealand centres over this time, Invercargill’s
patronage decline has been greater than the national trend. No specific explainable
reason for the decline has been identified. This suggests the current network could be
improved with a goal to increase patronage.

Invercargill’s current network is reasonably complex for a small network, with a series of
one-way loops and a peak and off-peak fare structure. The Community and Council
remain supportive of the public transport service but recognise the need to make
improvements to turn the service around.

This RPTP considers three route options for consideration and proposes that a revised
network layout, each having three connecting routes with increased timetabling (for
morning and evening commuters) be considered. This would remove the current one-
way loops and would provide a suitable outcome aligned with the customer feedback
received. A change to a simplified fare structure is also suggested to make travel more
easily understood, as cost effective as possible and encourage more travel to occur.

Council will also increase investment in bus shelters (including the Hub at Reading
Cinemas) to improve comfort for passengers while they wait for their service to arrive,
which again is what the customers have requested.

The RPTP also covers Council’s Total Mobility services and whilst this continues to
deliver quality services to the community, this plan is looking to move from the historical
voucher system and deploy the RideWise card into Southland.

The Passenger Transport service will have the new integrated ticketing system in place
by May 2018 and this will provide a wide range of benefits including being able to use the
replaced Bus Smart card in eight other districts throughout New Zealand. Our Contractor
GoBus will have replaced the current urban fleet with newer buses which will bring a
fresh look and improved ride for our customers.

The proposed changes to the routes, timetables and fares all have tried to operate within
the current budget scope. However, a small allowance has been made to anticipate
additional costs which are incurred when changes are made.

During the next three years, the current passenger transport contract continues with
GoBus which provides cost reliability with the most variable budget element being the
revenue obtained from the farebox. This is one of the measures the New Zealand
Transport Agency (NZTA) who co-invest look to closely monitor to ensure that a cost
effective service is delivered.

Feedback during consultation is important to confirm that the direction this plan proposes
is what its customers commonly desire.

Regional Public Transport Plan 2017                                                      8
1.         Introduction
1.1        ABOUT THIS PLAN

           The purpose of this plan is to outline and to summarise in one place, the
           Council’s strategic approach for the delivery of the Public Transport activity.
           Public transport is one of many activities addressed in the Invercargill City
           Council’s Long Term Plan (LTP).

           Invercargill City Council (Council) under delegation from Environment Southland
           (the Southland Regional Council) is required by the Land Transport Management
           Act 2003 (LTMA) to prepare a RPTP (i.e. the Plan). The LTMA sets out the
           requirements regarding the Plan’s content and the consultation process required
           in preparing the Plan.

           The LTMA states that the purpose of a Plan is to provide:

                  A means of encouraging Council and public transport operators to work
                   together in developing public transport services and infrastructure; and
                  An instrument in engaging with the public in the district on the design and
                   operation of the public transport network; and
                  A statement of:
                        The public transport services that are integral to the public transport
                         network; and
                        The policies and procedures that apply to those services; and
                        The information and infrastructure that supports those services.

           This Plan sets out Council’s intentions and policies regarding public transport in
           Southland in the next three years. The Plan takes into account all relevant
           national and local policies, and the public transport funding from NZTA likely to
           be available to Council.

1.2        ACTIVITY OVERVIEW

           The “public transport” referred to in this Plan is the subsidised bus service within
           Invercargill and any other council subsidised public transport service in the
           Southland region, and passenger service providers that relate to the Total
           Mobility scheme.

           It does not include long-distance bus services; Ministry of Education funded bus
           services, privately funded bus services or train services.

           Southland Region

           At this stage no subsidised services (other than some Total Mobility services)
           operate in Southland other than in Invercargill. Council has no plans to introduce
           any new services, but will consider any requests from the wider Southland
           community for such services (subject to the policies set out below). The costs
           for such services will need to be borne by the local authority in whose territory
           the service operates and NZTA.

           Invercargill Public Transport Service

           In 2017, 198,826 passenger trips were undertaken on the four one-way loop
           services which is a 24% reduction from 262,000 in 2012. Prior to 2012 there
           were 10 bus routes. Some of the services were free for users and patronage is
Regional Public Transport Plan 2017                                                            9
estimated at approximately 400,000 as Council was reliant on returns from the
           contractor.

           Council intends to continue to provide a bus service in the city.

           In 2012 the city bus routes and timetables were substantially revised and a new
           contract introducing the revised bus service commenced on 3 December 2012.
           The existing contract provides services over four routes in Invercargill, running
           on weekdays between 6.45 am and 6.40 pm, with services on Saturdays
           between 10.30 am and 3.40 pm. There are also 11 school routes catering
           specifically for school students going to and from school plus a service (four
           routes) catering for Southland Enterprises.

           Monitoring and analysis of the service demonstrates that these significant
           network changes have contributed to a decline in patronage. This RPTP
           proposes a revised network aimed at reversing the decline.

           Total Mobility Scheme

           Invercargill City Council provides administration support for the Total Mobility
           scheme with each council funding travel for registered users from their district.
           This scheme provides transport assistance to people with disabilities through the
           provision of half-priced taxi fares (up to a maximum subsidy of $25 per one-way
           trip). Total Mobility operates in Invercargill, Gore, and Southland District areas.

           Approximately 54,500 trips are made annually in Southland on the Total Mobility
           scheme. 50,000 of these are made by scheme members who reside in
           Invercargill, 4,500 by residents of Gore and 158 by residents of Southland
           District (when they visit Invercargill). Currently passenger service providers are
           only available in Invercargill and Gore.

           The annual subsidy cost of this service (excluding GST) is approximately
           $312,000 in Invercargill, $21,000 in Gore, and $1,100 in Southland District.
           These costs, as with the bus costs, are met by local ratepayers and NZTA. The
           average subsidy per trip is just above $6.00 (i.e. $6.12).

           Currently about 1,460 people in Invercargill, 230 in Gore and 13 in the Southland
           District are registered for the Total Mobility scheme.

           The scheme also subsidies vans capable of carrying people in wheelchairs, and
           provides for an extra $10.00 (excluding GST) subsidy per trip for the use of
           these vans in recognition of the costs and time involved in carrying passengers
           using a wheelchair. Council provides assistance with the costs of installing the
           necessary equipment into the vans to enable them to carry wheelchairs and
           mobility scooters. The maximum subsidy available for these van conversions
           has been $22,000 per van.

           Council administers the scheme, including the distribution of vouchers for use on
           the taxis, and payments to the taxi companies. A Total Mobility Committee
           (which comprises representatives of the local authorities in whose areas the
           scheme operates, the taxi companies and disability organisations) has been
           established to manage the scheme.

Regional Public Transport Plan 2017                                                         10
2.         Strategic Case
           The Otago Southland Regional Land Transport Plan 2018/21 (RLTP 2018/21)
           includes a policy related to providing subsidised Public Transport Services, one
           of which is in Invercargill. Should services be proposed in Southland but outside
           the Invercargill City Council area then a strategic business case will need to be
           developed and incorporated into a future RPTP.

2.1        ALIGNMENT WITH COUNCIL STRATEGIC GOALS

2.1.1      Community Outcomes

           Council has developed its own Council-focused ‘Community Outcomes’ for the
           LTP that will fulfil the requirements of ‘Community Outcomes’ under the Local
           Government Act.

           The new Community Outcomes have been derived from Council’s vision:

           “To enhance our City and preserve its character while embracing
           innovation and change.”

                                             Community Outcomes
                 Enhance our City            Preserve its Character        Embrace Innovation and
                                                                                  Change
                                           We will know success when:
            Invercargill’s population is   Invercargill is celebrated      Invercargill’s culture is
            over 1.2% of the New           for preserving its heritage     embraced through
            Zealand population.            character.                      Community projects.
            New residents feel             Ease of access                  The development of future
            welcomed and embraced          throughout the City is          industry is encouraged.
            by Invercargill culture.       maintained.
            Healthy and active             Our natural and existing        Technology is utilised in
            residents utilise space,       points of difference are        both existing and new City
            including green space,         celebrated.                     services.
            throughout the City.
            Invercargill’s economy         The building blocks,            Residents of, as well as
            continues to grow and          including water, sanitation     visitors to, Invercargill give
            diversify.                     and roading, for a safe,        positive feedback and
                                           friendly city is provided for   have great experiences.
                                           all members of the
                                           community.
            Invercargill’s business        Strong, collaborative           Invercargill has the ‘wow
            areas are bustling with        leadership of the City is       factor’ with the right
            people, activities and         demonstrated.                   facilities and events to
            culture.                                                       enjoy.

           Table 1 below sets out Council’s current community outcomes and how these
           have been translated into levels of service for public transport which have been
           used since 2015.

Regional Public Transport Plan 2017                                                                    11
Table 1 - Current Community Outcomes and Levels of Service

           Table 2 below sets out the current performance measures under the LTP. The
           LTP is updated annually through the Annual Plan process and a report is
           released annually on the targets and performance of Council against these.

                                                                             Customer
               Community                               How the Activity                        Measure of
                                      Council’s Role                          Level of
                Outcome                                  Contributes                            Service
                                                                              Service
             Enhance              Ensuring that        Passenger           Bus routes are     Homes in the
             our City:            the building         Transport           convenient.        Invercargill
                                  blocks for           ensures that a                         urban area
            Invercargill’s        sustainable          quality public                         are within
            economy               business are in      transport service                      400m of a
            continues to          place, including     is available,                          serviced bus
            grow and              energy, water,       accessible and                         route.
            diversify.            communications       affordable for
                                  and workforce.       people to travel
                                                       to work and
                                                       education
                                                       centres.
             Enhance              Provide or           Passenger           The bus            Farebox
             our City:            promote the          Transport           service is well    recovery and
                                  provision of a       ensures that a      utilised.          patronage.
            Healthy and           diverse range of     quality public
            active                excellent quality    transport service
            residents             and safe, indoor     is available,
            utilise space,        and outdoor          accessible and
            including             recreational         affordable for
            green space,          facilities, both     people to travel
                                  natural and          to recreational
            throughout
                                  man-made.            facilities.
            the City

             Enhance              Ensure that all      Passenger           Passenger          All members
             our City:            projects /           Transport           Transport          of the
                                  services             provides the        services are       community
            Invercargill’s        consider how         Total Mobility      provided for all   have the
            business              best they can        service that is     members of         opportunity to
            areas are             cater for people     subsidised          the                use public
            bustling with         with disabilities,   transport for       Community.         transport.
            people,               the elderly,         people who are
            activities and        youth and            unable to use
                                  families.            the bus service
            culture.
                                                       due to physical
                                                       or mental
                                                       impairment or
                                                       condition.

Regional Public Transport Plan 2017                                                                         12
Table 2 - Current Community Outcomes
                                              Activity and
             Community Outcome               Performance        2015/16 Target     2016/17 Actual
                                               Measure
            Healthy lifestyle in a     Passenger transport    90%                Achieved 90%.
            healthy environment.       - homes in the
                                       Invercargill urban                        2014/15: Achieved
                                       area are within 400m                      90%
                                       of a serviced bus
                                       route.
            A city that is a great     Passenger transport    Total Mobility     Achieved.
            place to live and visit.   - all members of the   scheme is
                                       community have the     administered.      2014/15: Achieved
                                       opportunity to use                        – total mobility is
                                       public transport.                         administered and
                                                                                 delivered to the
                                                                                 community.

2.1.2      Rationale for the Activity

           The basic objective of the Council-provided public transport network is to provide
           services which meet the basic needs of the community, particularly those without
           access to private transport.

2.1.3      Activity Objectives

           Strategic Fit

           The provision of public transport services is strongly aligned with the following
           outcomes:

                  A diverse and growing economy
                  Healthy lifestyle in a healthy environment
                  A city that is a great place to live and visit

           Car transport is the dominant mode of travel in Invercargill as 15 percent of
           households have three or more motor cars and nearly 90 percent of commuters
           drove to work, according to the 2013 Census. While it is challenging for public
           transport to compete in this environment, in terms of minimising transport energy
           use and greenhouse gas emissions to provide for a healthy environment,
           Invercargill needs to continue to support the provision of public transport.

           Public transport provides choice for people to access work, education, social and
           health facilities. These factors demonstrate a strong strategic fit with the LTP
           community outcomes.

           The Otago-Southland Regional Land Transport Plans (RLTP) is a document that
           the RPTP must also demonstrate a strategic fit with. The RLTP includes the
           following goals - “the transport system in Otago and Southland provides
           adequately for mobility, economic activity and productivity while minimising road
           trauma.”

           These goals are underpinned by three aims or critical success factors:

                  Transport enables and supports economic activity and growth.
                  Transport system meets social needs adequately.
                  Transport helps shape the future of Otago and Southland positively.

Regional Public Transport Plan 2017                                                                 13
Public transport in Invercargill supports these aims by providing a transport
           option for accessing employment and commercial activity. Public transport and
           Total Mobility both fulfil important linkages to social and community facilities,
           enabling the community to meet its social needs and shaping a positive future.

           Effectiveness for Invercargill’s public transport services are currently measured
           by the proximity to public transport services, patronage and farebox recovery.
           Patronage is a key measure of the performance of the service and this is
           currently declining, which also impacts on farebox recovery. To be effective,
           patronage needs to become stable or preferably increase.

2.2        BUSINESS DRIVERS

2.2.1      Regulatory Framework

           The Local Government Act (LGA) states the purpose of local government. In
           performing its role local government must have particular regard to the
           contribution to core services (including public transport services) that they make
           to their communities. The sustainable development role of local authorities
           should take into account the social, economic, and cultural interests of people
           and communities. There is a need to maintain and enhance the quality of the
           environment and the reasonably foreseeable needs of future generations (from
           Section 14(h) of LGA). The LGA also provides the framework for the LTP which
           local authorities use to decide what activities they will undertake and the manner
           in which they will undertake these. The Act promotes accountability of local
           authorities to their communities.

           The LTMA provides the legal framework for managing and funding land transport
           activities. The purpose of the LTMA (Section 3) is “to contribute to an effective,
           efficient and safe land transport system in the public interest.”

           The Act:

                  Provides an integrated approach to land transport funding and
                   management that takes into account the views of affected communities.
                  Improves social and environmental responsibility in land transport funding,
                   planning and management.
                  Provides the NZTA with a broad land transport focus.
                  Ensures options and alternatives are given full consideration at an early
                   stage in the development of programmes.
                  Ensures that land transport funding is allocated in an efficient and effective
                   manner.
                  Improves the flexibility of land transport funding by providing for alternative
                   funding mechanisms.

           The LTMA also defines the function and the roles of:

                  The NZTA.
                  Regional councils for land transport planning, programming and funding.
                  Auckland transport for land transport planning, programming and funding.
                  Regional transport committees.

           It also provides for:

                  Regional land transport strategies.
                  A Government Policy Statement on Land Transport.

Regional Public Transport Plan 2017                                                             14
2.2.2      District Plan and Council Policies

           Invercargill City District Plan (section 2.17.1) identifies the following significant
           resource management issues for transport as:

           1.      Ineffective integration of land use and transport can have adverse effects
                   on the safety, efficiency, effectiveness and accessibility of Invercargill’s
                   transport infrastructure.
           2.      Transport corridors and related transport movements can give rise to
                   adverse public health and environmental effects.
           3.      There are pressures on Invercargill’s transport infrastructure as a result of
                   demographic changes, projections of increased freight and land use
                   change, and there are limited transport options available to address these
                   pressures.
           4.      The efficiency and convenience offered by the City’s grid street pattern can
                   be compromised by poor urban design.
           5.      Incompatible urban and rural development can adversely affect the
                   transport network.

           The transportation objective for the plan is to provide for the development and
           sustainable management of transportation networks. Methods for achieving this
           include information provision and advocacy alongside rules including parking
           rules.

           Invercargill City Council Bylaw 2015/2 - Parking Control (incorporating
           amendments on 15 May 2017) sets the controls for parking within the city and
           shows the locations of bus stops. These Bylaws are available on Council’s
           website.

2.2.3      Long Term Plan

           This RPTP forms the activity management plan for Council’s public transport
           services. The RPTP aligns Council’s community outcomes, activity performance
           measures and targets.

2.2.4      Regional Land Transport Plan

           The provision of public transport in Invercargill is guided by a number of policy
           documents including the Government Policy Statement on Land Transport
           (GPS), the Otago Southland Regional Land Transport Plan (RLTP), Invercargill
           City Council’s Long Term and Annual Plan (LTP) and various guidelines issued
           by the NZTA.

           The latest GPS outlines the Government’s strategy to guide land transport
           investment over the next 10 years. It also provides guidance to decision-makers
           about where the Government will focus resources. The Land Transport
           Management Act 2003 sets out the scope and the requirements for the GPS.

           The overall goals of the GPS remain unchanged and are:

                  Road safety
                  Economic growth and productivity
                  Value for money

           The latest draft GPS 2018 recognises public transport as necessary to enable
           more New Zealanders to participate in society. Public transport in urban areas
           provides transport choice to get to important destinations like work and
           education. Further transport choice is provided with off-peak public transport
           services and increasing the accessibility of services for disabled people.
Regional Public Transport Plan 2017                                                           15
GPS 2018 support increases in public transport capacity and economic growth
           which will also provide some transport choice. It includes the following objective
           and result areas that are particularly relevant for Southland as follows:

           Objective: A land transport system that provides appropriate transport choices.

           Result: Provide appropriate and accessible travel choices, particularly for people
           with limited access to a private vehicle.

           The Otago Southland Regional Land Transport Plans 2015-2021 is a joint plan
           combining both strategic and project components. The long term goal set for
           land transport in Otago and Southland is:

           To provide accessible transport connections, giving users an appropriate choice
           of modes and to gain improved performance from the land transport system, by
           focusing on:

                  Road safety
                  Economic growth and productivity
                  Value for money

           According to the RLTP public transport delivers on the following priorities:

                  Users are able to access the network in a manner that is convenient and
                   affordable to users and funders
                  The network is reliable and resilient, helping community resilience
                  Value for money

           The RLTP envisage public passenger transport continuing to play a vital role in
           supporting community well-being by providing a means for those without cars,
           and those who choose not to travel by car, to travel longer distances. Public
           passenger transport will also remain important for those for whom active
           transport poses a physical challenge. As the regions’ population ages, with
           younger generations being less reliant on the private motor vehicle, and as
           changes in the price and supply of petroleum oil fuel affect people’s ability to
           travel by private vehicle, the role of public passenger transport (and shared
           transport) will grow.

2.2.5      NZTA Business Case Approach / Better Business Case

           In February 2017 an Investment Logic Mapping stakeholder workshop was held
           to focus on future investment. It was titled Adapting Invercargill Passenger
           Transport Services - 2018 to 2021 and beyond. The scope of the exercise
           focused on Invercargill’s urban area, not including Bluff and Otatara.
           Predominantly it focused on buses, and looked at the next five years and then
           beyond.

           Two key themes were identified around customer information and route
           design.

           The following problem statements were developed:

           1.      Historical decisions based on funder and service constraints results in less
                   convenient routes, timetables and reduced patronage (40 percent).
           2.      Lack of information on the needs of our existing and potential customers
                   results in a risk of poor investment decisions and missed opportunities (60
                   percent).

Regional Public Transport Plan 2017                                                          16
The Problem Statements from the Investment Logic Mapping (ILM):

           1.      Historical decisions based on funder and service constraints results
                   in less convenient routes, timetables and reduced patronage (40
                   percent).

                   Council undertook a major review of the city bus service in 2012 and as a
                   result of that review made substantial changes to routes, timetables and
                   fares. The new service was tendered in 2012 and the contracted service
                   began in December 2012. The contract runs until 29 June 2022 with a
                   mid-point review based on key performance indicators.

                   The current city service operates on four city routes which provide
                   coverage of the entire city. The service starts each weekday at 6.45 am,
                   with the last service leaving the central city at 6.00 pm. Services run every
                   45 minutes on each route. On Saturdays, six services operate every 45
                   minutes between the hours of 10.30 am and 3.40 pm. There is no Sunday
                   or public holiday service. An additional service (on two separate routes) is
                   provided on weekdays to and from Southland Disability Enterprises,
                   morning and evenings only.

                   In addition, 11 school routes operate (five in the morning and six in the
                   afternoon) within the city on school days.

                   The buses cover over 306,000 kilometres annually on these routes.

                   At the time Council thought that these current routes, timetables and fare
                   structure would be suitable for Invercargill based on demand levels and the
                   costs of providing the service.

                   The consequence of introducing these service changes has been less
                   convenient routes and timetables, and declining patronage.

                   On 9 February 2017 Blind Citizens NZ Southland Branch tabled a bus
                   route proposal to the Community Services Committee. This proposal used
                   input from members to suggest route changes which have been
                   considered through the network review. Their concerns include travel
                   times, improving access to some key destination and simpler timetables.

           2.      Lack of information on the needs of our existing and potential
                   customers results in risk of poor investment decisions and missed
                   opportunities (60 percent).

                   Council has a number of mechanisms for seeking feedback from its
                   community on the bus services including bus user surveys, Annual Plan
                   and LTP submissions and complaints by contacting elected officials or staff
                   directly. There are no customer satisfaction metrics in the RPTP. The
                   customer level of service on ‘bus routes are convenient’ is measured using
                   a 400m distance between homes and bus routes. Usually set (nationally)
                   at 500m, this measure is typically used to measure accessibility rather than
                   convenience.

                   The most recent user survey from December 2016 indicates a need for
                   improved bus shelters, improvements to BusSmart Central and buses
                   going both ways (i.e. removing the one way loops or reverting to the old
                   routes). Services more suitable for commuting and Sunday services are
                   also suggested through the survey feedback.

Regional Public Transport Plan 2017                                                           17
A component of the network review was to undertake a survey to better
           understand the outcomes of both existing and potential customers.

           The Investment Benefits from the ILM:

           1.      Improved network performance and capability (55 percent)
           2.      Improved community access, connectivity and wellbeing (30 percent)
           3.      Better value for funders (15 percent)

           These are further explained below:

           1.      Improved network performance and capability (55 percent)

                   The current operating network is designed as a series of one way loops
                   and this significantly increases the travel time as passengers must travel
                   indirect routes to access destinations. A more straightforward network
                   would be an improvement to the network performance.

                   Council invests around $465,000 (in 2017/18) per annum on Invercargill’s
                   public transport services. Success is currently measured in terms of
                   outputs (patronage), coverage (distance a customer has to walk to a
                   service) and the cost ration recovered from passengers (as a ratio of fare
                   revenue and operating cost).

                   To understand improved network performance and capability, measures
                   should be translated into outcomes aligned with the LTP customer level of
                   service – bus routes are convenient and the bus service is well utilised.

                   Measures could be focused on transport disadvantaged use – for example,
                   percentage of transport disadvantaged who regularly use public transport.

                   Capacity is often discussed in terms of public transport – the ability to carry
                   more passengers. Here in Invercargill the problem is framed as capability.
                   Capability in this context can be interpreted as processes to increase the
                   quality of outcomes and satisfaction of customers.

                   Revision of the network should identify key destinations, and improve
                   network performance and customer satisfaction.

           2.      Improved community access, connectivity and wellbeing (30 percent)

                   The investment benefits for Invercargill’s services are largely social – the
                   buses enable those without other forms of transport to get where they
                   need to go, in particular to places of work, education, healthcare, welfare
                   and food shopping.

                   Improved community access, connectivity and wellbeing should be
                   targeted in the parts of the community when transport disadvantage is
                   highest. One indication of potential focus areas could be areas of social
                   deprivation as shown in Figure 1 Social Deprivation Index and Scale, along
                   with key destinations including Southland Hospital.

Regional Public Transport Plan 2017                                                             18
Figure 1 Social Deprivation Index and Scale

                   The recent submission to Council regarding rerouting services suggests
                   that, even with the current coverage measure of 400m maximum walk from
                   a stop which is a higher coverage than that nationally used at 500m travel,
                   there are still some improvements to community access, connectivity and
                   ultimately wellbeing that can be made.

                   Examples of how public transport can contribute to wellbeing include
                   fostering childrens’ independence and mobility, and concessionary bus
                   travel for older people, both of which have associated increases in walking
                   and benefits to public health.

                   International research suggests that using public transport, walking or
                   cycling to work was associated with a 20 percent lower likelihood of being
                   overweight1. Those who used public transport had about 25 percent
                   reduced chance of being obese compared to those who did not.

           3.      Better value for funders (15 percent)

                   Value for money should not solely be focused on the subsidy provided per
                   passenger. Value for money can be defined as “the best outcome for the
                   money spent” or the “optimum combination of whole of life costs combined
                   with quality”.

                   Cost alone is not a reliable indicator of value for money. The LTP uses –
                   “Passenger Transport ensures that a quality public transport service is
                   available, accessible and affordable for people to travel to work and
                   education centres” as a performance measure. This performance
                   measure can be translated into a value for money key performance
                   indicator for this plan.

1
 “Active travel and bus passes: the impact on public health” Dr Elizabeth Webb, Epidemiology and
Public Health, UCL.
Regional Public Transport Plan 2017                                                            19
The next section of the Plan sets out a series of policies and objectives
                   which aim to address the problems, issues, constraints and benefits
                   identified above.

2.3        STRATEGIC ISSUES AND CHALLENGES

           In 2012 the Invercargill network was redesigned to cost substantially less than
           the previous service with a goal of passengers contributing substantially more to
           the cost of operating the service. The service also focused on providing
           transport choice for transport disadvantaged and has an unusually high
           coverage metric (400m to a serviced bus route) compared to the more common
           500m measure.

           Patronage has declined by nearly 25% since the 2012 service changes. This
           issue is not unique to Invercargill. Excluding Auckland, Wellington and
           Christchurch patronage nationally declined by 2 percent between 2014 and
           2015, only to recover by 2 percent in 2016.

           A high cost recovery service would typically focus on commuter trips and this is
           reflected in the fares differential for peak services. Focusing on the transport
           disadvantaged is consistent with reduced fares for off-peak and 400m routes
           metric, which also constrains the ability to make route changes without
           generating additional costs. The plan has conflicting priorities, and the outcome
           measures (particularly patronage and farebox) suggest this approach has been
           unsuccessful. The complexity of outputs measured and the lack of focus on the
           customer is constraining the success of the service.

           The advent of driver-less cars and the expansion of the “service model” into
           transport will change the role of public transport in the future. There is much
           discussion around “mobility as a service” and the potential for much lower car
           ownership in the future. Cars are expensive assets and not used approximately
           95 percent of the time. It is unlikely individual car ownership will completely
           disappear but the role of public transport could well change. The network needs
           to be flexible to adjust to these changes in technology and this could well be a
           key consideration for the next tender round.

           The key Corporate Strategic Issues and Challenges (relating to Passenger
           Transport) are:

                  Meeting our long-term renewal expectations for infrastructure.
                  Encouraging growth projects whilst ensuring financial and operational
                   sustainability for future generations.
                  Ensuring that Council works in a financially prudent manner that promotes
                   the current and future interests of the community.
                  The City’s changing demographic profile and its ability and willingness to
                   pay.
                  Responding to the changing environment (both natural and technological)
                   and retaining Invercargill’s character within its built environment.

           Plus

                  Developing new routes and timetables which meet customer expectations.
                  Developing new fare structures which are easy to use and fair.

2.4        ASSUMPTIONS

           Council has developed assumption corporately for developing activity plans. In
           Appendix 1.01 is a summary of these and a full outline is available on Council’s
           website.
Regional Public Transport Plan 2017                                                         20
The corporate assumptions which are seen to impact on this plan are:

2.4.1      Internal Factors

                                                                         Area of Impact and
                    Assumption            Level of Uncertainty
                                                                      potential Financial Impact

            Population

            The population will         Moderate – risk that actual   Infrastructure and Housing.
            increase to 56,300 by       numbers will vary.
            2028.                                                     Significant increases in
                                                                      population may create a
                                                                      demand for infrastructure
                                                                      and services beyond existing
                                                                      capacity. Significant
                                                                      decrease in population
                                                                      would adversely impact on
                                                                      the community’s ability to
                                                                      fund current levels of
                                                                      infrastructure and services.

            Household Growth

            An average of 2.3 people    Moderate – risk that actual   Infrastructure and Housing.
            per household in 2038,      numbers will vary.
            requiring 2,300 more                                      Significant increases in the
            homes from the 2013.                                      number of households may
                                                                      create a demand for
                                                                      infrastructure and services
                                                                      beyond existing capacity.

            Ageing Population

            Those 65 years and older    Low – increasingly older      Council Services and
            will make up                population is reasonably      Recreation Assets.
            approximately 22% of        certain.
            Invercargill’s population                                 An increase in the number of
            by 2023.                                                  those people 65 years and
                                                                      older will increase the
                                                                      number of ratepayers on
                                                                      fixed incomes and may have
                                                                      an impact on the ability of
                                                                      the community to afford
                                                                      infrastructure and services.

            NZTA

            That the NZTA Funding       Low – NZTA have stated        Roading.
            Assistance Rate will        in plans that this will
            reduce by 1% each year      occur.                        Lower than anticipated
            until a low of 51%.                                       subsidies can result in
                                                                      service delivery costs
                                                                      needing to be met by other
                                                                      means or a decrease in the
                                                                      level of service.

Regional Public Transport Plan 2017                                                                  21
2.4.2      Financial Factors

                                                                              Area of Impact and
                    Assumption               Level of Uncertainty
                                                                           potential Financial Impact

            Local Economy

            The local economy will         Moderate – financial            Composition of local
            grow and diversify.            impact difficult to forecast.   economy may diversify
                                                                           offering greater employment
                                                                           opportunities.

                                                                           Significant change to the
                                                                           economy, such as a large
                                                                           employer choosing to locate
                                                                           in the District, may require
                                                                           Council to review and
                                                                           change its current activities
                                                                           and levels of service. These
                                                                           demands will need to be
                                                                           quantified and an
                                                                           amendment to the LTP
                                                                           developed if the costs are
                                                                           significant.

2.4.3      External Factors

                                                                              Area of Impact and
                  Assumption                 Level of Uncertainty
                                                                           potential Financial Impact

            Local Governance

            Amalgamation will not          Low – to continue shared        Shared Services, Policy and
            occur during the life of the   services, although              Governance.
            Plan.                          amalgamation is low risk.
                                                                           Boundary changes would
                                                                           require a review of the LTP
                                                                           with its associated
                                                                           community consultation.

            Technology

            Changes in technology          High – certainty of             Employment, Local Economy
            will affect how Council        diversification in              and Services (delivery).
            carries out its activities.    technology is ever-
            This will have a financial     growing. Impact of              New technologies will likely
            implication over the 10        changing technology             have an increased financial
            year plan.                     cannot be quantified.           cost in the short term.

            Legislation

            There will be changes to       Moderate – difficult to         Services, Finances and
            legislation that have an       know what central               Governance.
            impact on what and how         government will
            Council provides services.     implement, particularly if a    Significant legislative change
                                           change in government.           can impose significant
                                                                           financial and service delivery
                                                                           costs on Council.

           Other activity assumptions are:

Regional Public Transport Plan 2017                                                                         22
Assumption Area         Level of Uncertainty         LTP Assumption
            Technology – Changes to     High                    Technology change will
            how services are                                    enhance the use of the
            delivered through                                   service and patronage will
            customer interactions                               benefit from the change.
            such as Uber for
            Passenger Transport.
            Bus Shelters – Obtaining    Low                     Suitable locations are able to
            approvals to locations                              be found with reasonable
            which are convenient.                               installation costs.
            Fare Changes – Adopting     Moderate                Flat fare structures proposed
            a fare structure which is                           will provide at worst a cost
            easy to use and fair.                               neutral situation.
                                                                Patronage will respond to a
                                                                fare change positively.
            Route Changes –             Moderate                Patronage will respond
            Adopting new routes                                 positively to changes and a
            which customers accept.                             net increase in usage will
                                                                result, stabilising the total
                                                                usage numbers.
            RideWise cards.             Low                     Customers will positively
                                                                adopt the card usage but
                                                                total number of trips will not
                                                                significantly rise.
                                                                Cost of Total Mobility
                                                                remains consistent.
                                                                Improved travel control
                                                                results from use of cards.
                                                                Process and overall cost of
                                                                service administration
                                                                decreases.
            Operator Costs –            Moderate                Operator costs due to any
            Contractual agreements                              route change are close to
            are similar to current                              cost neutral.
            costs.
            Local Governance – Both     Low                     ICC continues to deliver the
            ICC and ES agree current                            Passenger Transport
            delegation is acceptable.                           services for Southland.

Regional Public Transport Plan 2017                                                              23
3.         The Service We Provide
3.1        CUSTOMER PROFILE

3.1.1      Our Stakeholders and Community

           Invercargill’s public transport service is open to the public, subject to users
           paying the required fare. The Total Mobility scheme is designed for people with
           mobility impairments that prevent them from using public transport. Total
           Mobility users are assessed for eligibility.

3.1.2      How We Engage our Communities

           Council engages with the community on a regular basis with public transport
           passengers. Passengers and Total Mobility users regularly provide compliments
           and complaints on the services that operate. This information forms part of the
           service reviews and discussions with operators regarding the performance of
           drivers and services.

           Council also conducts an annual user survey, where passengers are asked
           questions regarding the service. Feedback on services is also obtained through
           community engagement processes including the development of the LTP.

3.1.3      Community Research

           A community survey was completed in 2017 with 95 responses and a good
           geographic spread.

           This research identified the following positives:

                  Friendliness of drivers
                  Free wi-fi
                  Smartcard system
                  Track-a-bus
                  Flexibility of the pick-up and drop-off
                  Frequency
                  Fare levels

           The negative issues identified were:

                  Travel times
                  Links to key desintations, e.g. Smiths City, Farmers, Bond Street
                  Timing of services and service span
                  Frequency, especially on Saturdays
                  Shelter provision at stops, particularly the central hub
                  Peak fare differential
                  Confusing timetables
                  Driver attitudes and the condition of some vehicles

           The previous resident’s phone survey in 2014 found only 9 percent of
           respondents had used the bus in the last month. The key reasons given for not
           using public transport were inconvenient bus routes (21%) and inconvenient
           timetables (11%). The 2016 Bus Smart survey key requests were for more bus
           shelters (33%); Sunday bus service (26%); two way routes (25%); weather proof
           bus hub (18%) and more convenient times for workers (10%).

Regional Public Transport Plan 2017                                                     24
The key takeouts are there are some positives including driver friendliness; the
           application of technology; and the perception of value for money. But there is
           general dissatisfaction, particularly with the routes, running times, times of
           buses, and frequency of services and shelters.

3.1.4      Key Service Attributes Valued by Customers

           Typically there are a number of desirable service attributes valued by public
           transport customers. These include:

                  Reliability
                  Frequency
                  Legibility
                  Safety and security

3.2        OBJECTIVES AND POLICIES

           The following table sets out the service objectives, policies and measures:

               Objective                       Policy                             By 2021
            A fare system         Structure the fares and ticketing   85 percent of passengers are
            that attracts         system in a way that:               satisfied with the level of fares.
            and retains
                                  a)   is simple to understand,
            customers.                                                85 percent of passengers are
                                       collect and administer
                                                                      satisfied that the fare system is
                                  b) is consistent across all
                                                                      easy to understand.
                                       users
                                  c) enables transfers within a
                                       reasonable timeframe
                                  d) is easy to access for all
                                       users
                                  Set fares at a level that is        85 percent of passengers are
                                  competitive with the costs of       satisfied with the level of fares.
                                  parking and private vehicle use.
                                  Report on the comparison costs
                                  between car parking, vehicle
                                  ownership and bus fares in
                                  Invercargill.
                                  Fares are charged through the       85 percent of passengers are
                                  Regional Integrated Ticketing       satisfied with the level of fares.
                                  System.
                                  Review fares annually with a        85 percent of passengers are
                                  preference for smaller regular      satisfied with the level of fares.
                                  adjustments rather than large
                                  infrequent changes.
                                  Ensure all users pay the correct    85 percent of passengers are
                                  fares.                              satisfied that the fare system is
                                                                      easy to understand.
                                  Support the SuperGold card          85 percent of passengers are
                                  scheme during off peak times in     satisfied with the level of fares.
                                  accordance with NZTA
                                  guidelines and Government’s
                                  provision policy2.
            Provide for the       Target service provision to         Network design principles
            transport             areas with higher levels of         focused on transport
            disadvantaged         social deprivation, lower car       disadvantaged service
            information,          ownership rates and other           provision are implemented and
            safe facilities,      indicators of transport             monitored.

2
  As the Government has limited the funds available for providing this scheme Council will review
its involvement in the scheme in 2019.
Regional Public Transport Plan 2017                                                                        25
Objective                        Policy                             By 2021
            and services          disadvantage.
            that are
            increasingly
            available to all
            members of
            the public.
            All members           Provide for trial services to test   Local authority has ownership
            of the                demand for new service               of progressing any proposal
            community             proposals.                           through to implementation.
            have the              Continue to administer and           Council administers and
            opportunity to        support the Total Mobility           supports the Total Mobility
            use public            scheme.                              scheme.
            transport.            Manage the day-to-day                The Total Mobility Committee
                                  operation of the Total Mobility      meets three times per year.
                                  Scheme through the Total
                                  Mobility Committee which is
                                  comprised of councils, service
                                  providers and disability
                                  organisations. The Committee
                                  will be responsible for setting
                                  local rules within the guidelines
                                  set by NZTA.
                                  All Total Mobility service           All Total Mobility contracts are
                                  providers are required to have       reviewed and updated.
                                  contracts with Council which are
                                  based on the NZTA model
                                  contract, and set out service
                                  standards and conditions.
            Total Mobility        New services and existing            The RideWise system will be
            is well               services will provide consistent     introduced to manage Total
            managed.              and clear management and             Mobility trips.
                                  payment mechanism for the
                                  Total Mobility service.
                                  Council will monitor and report      Council will identify and
                                  on the availability of wheelchair    implement a suitable ration of
                                  hoists for Total Mobility Scheme     wheelchair hoists compared to
                                  users.                               users.
            An effective          Transition to the Public             Public Transport Operating
            and efficient         Transport Operating Model.           Model (PTOM) requirements
            procurement                                                continue to be implemented
            approach that                                              and are fully implemented by
            is fit for the                                             July 2022 (new contract
            scale of                                                   commences).
            Southland’s           Maintain competition - units are     The next Invercargill unit is
            network.              competitively tendered when          competitively tendered upon
                                  renewed.                             completion of the current
                                                                       contract or in 2022.
                                  The delegation to ICC is not an      An unallocated unit is included
                                  impediment to new services in        in the RPTP which may be
                                  the Southland region.                used for a trial service.
                                  Adopt a partnering approach to       Annual business plan process
                                  network planning and service         is developed and implemented
                                  changes.                             with the contractor.
            Timely and            Utilise technology and operator      Report on monthly patronage
            effective             reporting to monitor on time         trends.
            monitoring            performance.
            that assists in       Comply with the NZTA reporting       Regular updates in Transport
            the                   requirements.                        Investment On-line (TIO).

Regional Public Transport Plan 2017                                                                       26
Objective                       Policy                           By 2021
            management            In conjunction with the            Annual business plan process
            of the network        contractor, regularly review the   is developed and implemented
            over time.            new city routes and timetables     with the contractor.
                                  to ensure they continue to meet
                                  the needs of the community.
            Improve               Targeted improvements of bus       Council will develop a list of
            infrastructure.       shelters, seats and timetable      new bus stop shelter locations
                                  information.                       and a programme of works for
                                  Installation of new bus shelters   improving infrastructure.
                                  and improving access and
                                  safety to bus stops for mobility
                                  impaired people.
            Vehicle               All vehicles entering the fleet    Council considers and
            quality.              will comply with the NZTA’s        approves new vehicles before
                                  Requirements for Urban Buses.      use on the network.

3.2.1      Units

           Invercargill has four urban bus routes and a small number of supporting school
           bus services. This RPTP supports the maintenance of one unit covering the
           current Invercargill City service and a second unspecified unit, for the purposes
           of making provisions for any future trial service.

           This single unit / single contract system will continue for the Invercargill bus
           service. The unit will be procured (once the current contract expires) by tender
           based on the approach outlined in the Council Procurement Strategy. The
           Procurement Strategy will be reviewed before the next tender round is due.

           The current contract for the city bus service runs until December 2017 and
           contains provision for an extension until June 2022. The next tender is not
           expected until 2021 (assuming the current contract runs the full term). The new
           PTOM unit contract would be expected to commence on or before 1 July 2022.
           The current contract includes many of the elements of the (PTOM). Where
           agreement can be reached with the operator more PTOM elements may be
           introduced during this contract.

           The Council intends to continue to provide financial assistance to the Invercargill
           unit / contract.

           Any new service will be deemed to be a separate unit in terms of the LTMA.

           There are no exempt services within the meaning of the LTMA in Invercargill that
           are needed to be replaced by a unit.

3.2.2      Partnering with Contractors

           Invercargill City Council already has a very close working relationship with its
           contractor. This is aided by the small size of the Invercargill district and there
           being only one bus contract. Council recognises that the contractor has a
           unique and close perspective on how the service is performing and on what
           improvements might be made.

           Council recognises that the best way to improve passenger numbers is to have a
           high-quality service, both in terms of reliability and driver helpfulness. The
           contract includes requirements for the contractor to report regularly on certain
           performance indicators. These criteria will be based on those developed by

Regional Public Transport Plan 2017                                                                   27
You can also read